IDP PARTICIPATION IN THE «AFFORDABLE HOUSING» (5050) PROGRAMME

IDP PARTICIPATION IN THE
«AFFORDABLE HOUSING»
(50/50) PROGRAMME
EVALUATION REPORT
Prepared by UNHCR Ukraine

AFFORDABLE HOUSING PROGRAMME FOR IDPS – EVALUATION REPORT
UNHCR / 23 January 2019 2
Acknowledgements
The evaluation report on the IDP participation in the «Af-
fordable Housing» (50/50) Programme was prepared by
UNHCR Ukraine. The editorial team, led by Anita Rohner
(Durable Solutions Officer), included Oleksandr Khoro-
shavin, Yurii Arnautov, and Igor Chantefort as reviewer.
The evaluation contained in this report only refers to survey
respondents who received housing through the Affordable
Housing Programme for IDPs in 2017. The designations em-
ployed and the presentation of country or area names, in-
cluding in maps and country listings, do not imply the ex-
pression of any opinion whatsoever on the part of UNHCR
concerning the legal status of any country, territory, city or
area, or the delimitation of its frontiers or boundaries.
The editorial team thanks all survey respondents for taking
their time to fill in the online questionnaire.
Publishedby the United Nations HighCommissioner for Ref-
ugees (UNHCR).
Copyright © United Nations High Commissioner for Refu-
gees, 2019
CONTACT US
UNHCR Representation in Ukraine
16, Lavrska Street, Kyiv, 01015, Ukraine
Tel.: +38 (044) 288 97 10
Email: ukrki@UNHCR.org
[COVER PHOTOGRAPH:]
[“Ceremony with IDP recipients of contracts with the State Youth Fund”, Central office. State Youth Fund, 28.11.2018]

Contents
List of abbreviations.........................................................................................................4
1. Introduction................................................................................................................5
1.1 Background of the report.................................................................................5
1.2 Purpose of the report .......................................................................................7
1.3 Evaluation methodology..................................................................................8
1.4 Report structure................................................................................................9
2. Findings and data analysis ...................................................................................10
2.1 Geographic profile of recipient households .....................................................10
2.2 Demographic profile of recipient households ..................................................11
2.3 Economic profile ..................................................................................................12
2.4 Educational profile...............................................................................................17
2.5 Motivation to participate in the Affordable Housing programme ..................17
2.6 Application process .............................................................................................18
2.7 Financial contribution of survey respondents to the Affordable Housing
programme ..................................................................................................................20
2.8 Housing object......................................................................................................22
2.9 Access to city centre and social infrastructure................................................25
3. Observations about the 50/50 programme ............................................................26
4. Conclusions and recommendations........................................................................30

List of abbreviations
(50/50) Programme / ”50/50” Programme Commonly used title for the Afforda-
ble Housing Programme for IDPs and
veterans
Cabmin Cabinet of Ministers
GCA Government Controlled Area
IDP Internally Displaced Person
Minregion Ministry of Regional Development,
Construction, Housing and Commu-
nal Services of Ukraine
NGCA Non-Government Controlled Area
NGO Non-Governmental Organisation
NMS National Monitoring System
Sqm Square metre
UAH Ukrainian hryvnia
VAT Value added tax

1.Introduction
1.1 Background of the report
In 2015, the Cabinet of Ministers of Ukraine adopted a “Comprehensive National
Programme for Support, Social Adaptation and Reintegration of Citizens of Ukraine
Internally Displaced“, which foresaw that Internally Displaced Persons (IDPs)
should be included into the Government’s Affordable Housing Programme. This
programme is implemented by the State Youth Fund, which is a financial state
institution controlled by a supervisory board, the Ministry of Regional Development,
and the National Commission on Regulation of Financial Services. The idea behind
the Affordable Housing Programme is to allow Ukrainian households with needs
for improved housing condtions to apply for subsidised housing.
Under the aspect of Affordable Housing, the State Youth Fund has currently sev-
eral operational mechanisms at the national level. The general component pro-
vides affordable housing at a rate of “70/30” to Ukrainains who successfully applied
for affordable housing. It means that if the applicant household is able to cover
70% of the apartment costs, the State Youth Fund contributes a cost coverage of
30%.
In 2017, the Affordable Housing Programme was amended to specifically tar-
get IDP and veteran households. It foresees participation of IDPs and veter-
ans in a subsidised housing purchase programme, where 50% of the apart-
ment costs are covered by the IDP/veteran household and 50% by the state
budget. Applicant households are registered on a waiting list. Based on a “first
applied – first served” basis, the State Youth Fund offers “contracts for mainte-
nance of funds for construction1
” (hereafter called “housing contracts”) to the first
households on the waiting list, financially limited by the yearly budget of the Afford-
able Housing Programme. As a next step, these households need to pay 50% of
their apartment costs within a few days to be able to sign a housing contract with
a developer, and at a later stage, move into their newly purchased apartment. This
1
Official title of the housing contract between the housing recipients and the State Youth Fund, ac-
cording to the decree no. 819.

programme is commonly referred to as the “50/50 programme”. In 2017, the Af-
fordable Housing Programme for IDPs operated with a funding volume of 30 million
Ukrainian hryvnias (UAH) and in 2018 with 100 million UAH. The legal basis of the
entire Affordable Housing Programme is covered by Ukrainian law no. 800 “on the
prevention of the consequences of the world economic crisis on the construction
sector”. The Cabinet of Ministers (Cabmin) decree no. 140 of 2009 used to regulate
the procedure of the Affordable Housing Programme. As of 10 October 2018, Cab-
min decree no. 140 of 2009 has been replaced by a new Cabmin decree no. 819,
which has entered into force.
The main differences between both Cabmin decrees are:
1) Selection of housing objects: Cabmin decree no. 140 of 2009 foresaw that
applicants receiving a housing support offer from the State Youth Fund chose
apartments based on a list of newly constructed objects selected by the Ministry of
Regional Development (Minregion). As per the new Cabmin decree no. 819 of
2018, buildings are not pre-selected by Minregion, but applicant households them-
selves have to actively search and choose suitable developers who have to provide
them with a set of required documents. The documents have to be shared with the
State Youth Fund and should include among others, information about the devel-
opers’ legal identity, the land plot and the construction stage.
2) New selection procedure: The new Cabmin decree no. 819 of 2018 foresees
a three-step system, which includes the regional offices of the State Youth Fund,
the State Youth Fund and the Commission. The regional offices of the State Youth
Fund collect and process the documents, and provide the State Youth Fund with
preliminary conclusions. As a second step, the State Youth Fund establishes a list
of applicants and proposed recipients of state support, and submits the list to the
Commission for approval. This Commission is tasked with reviewing the proposed
list of applicants and deciding on the recipients of state support. Afterwards, the
regional offices of the State Youth Fund inform the applicant households about the
decision of the Commission. The Commission determines the housing object, the
financial size of the state support (in comparison with the regional price adopted
by Minregion) and the state support recipients.
3) Cabmin decree no. 819 of 2018 foresees that beneficiaries of housing support
under the Affordable Housing Programme have to refund their obtained state

support in case they sell their received housing object during the first three
years.
Apart from the national state budget, different Ukrainian settlements decided to
introduce their own local budgets for Affordable Housing Programmes for IDPs.
The sum of local budgets for 2018 is not yet known.
In early 2018, UNHCR Ukraine proposed to the State Youth Fund to inde-
pendently evaluate IDP participation in the Affordable Housing Programme
(50/50) from the perspective of IDP households who received housing sup-
port from this programme in 2017.
1.2 Objectives of the report
The objective of this evaluation is to collect information about IDPs’ access to the
Affordable Housing Programme in 2017 and to analyse their socio-economic pro-
file as of mid-2018. For this purpose, UNHCR Ukraine reviewed the experience of
IDP families who received an apartment under the State Youth Fund’s Affordable
Housing Programme. For comparison purposes, UNHCR used the statistical data
of the International Organisation for Migration’s National Monitoring System
(NMS)2
. Furthermore, statistical data prepared by the Ukrainian Ministry of Social
Policy was consulted.
The goals of this analysis are:
 to present the socio-economic and demographic profile of surveyed IDP hous-
ing recipient households;
 to present lessons learned for the State Youth Fund, which the State Youth
Fund may include in its future work;
 to suggest legal improvements on the Cabmin decree no. 819; and
 to advocate for improvement and expansion of housing programmes for IDPs.
2
June 2018 edition

1.3 Evaluation methodology
This report is based on a systematic evaluation of 52 out of 65 IDP families who
received housing through the State Youth Fund’s Affordable Housing Programme
in 20173. The state budget for this programme was 30 million UAH. The review was
achieved by means of the following steps:
 Desk review of information on the Affordable Housing Programme (50/50) for
IDPs (April-May 2018);
 Elaboration of an online questionnaire for households who received housing
support through the Affordable Housing Programme. The questionnaire was re-
viewed by the Ukrainian State Youth Fund (May-June 2018);
 The State Youth Fund contacted the recipient households, encouraging them
to participate in the online questionnaire. The State Youth Fund shared the
questionnaire link with the beneficiary households (June-July 2018);
 The State Youth Fund informed employees of its regional offices about the re-
view and encouraged them to fill out a questionnaire about their experience with
the Affordable Housing Programme. The questionnaire was reviewed by the
Ukrainian State Youth Fund (June-July 2018);
 52 recipient households filled in the online questionnaire (July-August 2018);
 Receipt of e-mail responses from local State Youth Fund employees (August
2018);
 Assessment and analysis of online data on the Affordable Housing Pro-
gramme’s beneficiary households; elaboration of a PowerPoint presentation
(September-October 2018);
 Elaboration of an evaluation report in English and Ukrainian languages (Octo-
ber-December 2018).
Limitations of the methodology:
UNHCR was only able to receive information from the housing beneficiaries based
on the online questionnaire in order to respect the State Youth Fund’s precondition
of complying with the Constituion of Ukraine, which prevents the disclosure of per-
3
With a 90% confidence level, there is a confidence interval of 5.3.

sonal data to a third party. Therefore, UNHCR was not able to directly contact sur-
vey respondents or verify the survey information, which makes the data set of the
online survey a collection of spontaneous declarations of unverified surveyed re-
spondents.
1.4 Report structure
Part 1 covers background information about the Affordable Housing Programme
for IDPs, the purpose of the evaluation and its methodology.
In part 2, the report builds a statistical base using a sample analysis of measurable
information on IDP families who benefitted from the Affordable Housing Pro-
gramme for IDPs. It includes analyses on:
 The geographical profile of beneficiary IDP families;
 The demographic, social and economic profile of beneficiary IDP families, includ-
ing their household size, financial and employment situation and educational
level;
 IDP beneficiary families’ access to the Affordable Housing Programme for IDPs
and their satisfaction with the application procedure;
 Physical conditions of the acquired apartment; and
 Housing accessibility to social infrastructure.
Part 3 covers observations on the Affordable Housing (50/50) Programme and the
underlying Cabmin decree no. 819.
This report‘s part 4 sets out concrete recommendations on how the Affordable
Housing Programme for IDPs could be optimised.

2.Findings and data analysis
2.1 Geographic profile of recipient households
The majority of the 52 families who filled in the online survey received their apart-
ment in either Kyiv region (18), Luhansk region (8) or Kharkiv region (7). Fur-
thermore, three families each received a chance to move into apartments in Za-
porizhzhia, Poltava and Odesa regions. Two families acquired an apartment in Do-
netsk region and two families got an apartment in Dnipropetrovsk region. The re-
maining apartments were given to families living in other urban locations.
Households displaced from Luhansk or Donetsk city made up 61% of all sur-
veyed households, which received an apartment through the Affordable Housing
Programme; 25% used to live in rural non-government controlled areas (NGCA)
and 14% stayed in government controlled areas (GCA) of Luhansk/Donetsk region
before their displacement.
1.9 1.9 1.9 1.9 1.9 1.9
3.9 3.9
5.8 5.8 5.8
13.5
15.4
34.6
0.0
5.0
10.0
15.0
20.0
25.0
30.0
35.0
40.0
Figure 1. Location of survey respondents (in %): Volyn region (Lutsk/Kovel), Zakarpattia region (Uzhorod),
Chernihiv region (Chernihiv), Ternopil region (Ternopil), Sumy region (Sumy/Shostka), Ivano-Frankivsk re-
gion (Uhornyky), Dnipropetrovsk region (Dnipro), Donetsk region (Sloviansk/Lyman), Zaporizhzhia region
(Zaporizhzhia), Poltava region (Poltava/Kremenchuk), Odesa region (Ilichanka), Kharkiv region (Kharkiv),
Luhansk region (Sievierodonetsk), Kyiv region and Kyiv city (Kyiv/Borispil).
Volynregion
Zakarpattiaregion
Chernihivregion
Ternopilregion
Sumyregion
Ivano-Frankivskregion
Dnipropetrovskregion
Donetskregion
Zaporizhzhiaregion
Poltavaregion
Odesaregion
Kharkivregion
Luhanskregion
KyivcityandKyivregion

2.2 Demographic profile of recipient households
On average, surveyed house-
holds consist of 3.02 persons.
This indicates that the survey en-
compasses information about a to-
tal of 157 persons. The average
number of household members is
15% higher than an average
Ukrainian IDP household4. Com-
pared with an average Ukrainian
household, it is higher by 17%5.
Children represented 37% of all
surveyed household members.
20% were persons of age 60+ and
43% were adults of working age.
Among them, 3% were persons
with disabilities, which is close to
the proportion of persons with offi-
cially recognised disabilities in the
total Ukrainian IDP population (3.22%)6. 42% of all surveyed household members
were women, which is much lower than the proportion of women in an average
Ukrainian household (54%)7 and in an average Ukrainian IDP household (57%)8.
The reasons for these discrepancies remain unclear.
The survey indicates that 26% of all households had a young mother and 16% a
young father under the age of 36. Only 27% of the surveyed households had a
retired head of household (both genders equally), which is similar to the proportion
4
National Monitoring System Report on the Situation of Internally Displaced Persons, June 2018.
Page 10. http://www.iom.org.ua/sites/default/files/nms_round_10_eng_press.pdf
5
Expenses and resources of households in Ukraine (according to the data of the sample survey of
living conditions of households) for 9 months of 2017. Statistical Bulletin. State Statistics Service of
Ukraine. – K., 2017. Page 34. http://www.ukrstat.gov.ua/druk/publi-
cat/kat_u/2018/zb/07/zb_vrdu2017_pdf.pdf
6
Statistics of the Ukrainian Ministry of Social Policy, November 2018. https://bit.ly/2CZaLzr
7
Distribution of the permanent population of Ukraine by gender and age as of January 1, 2018. Ex-
press Issue 21.06.2018. State Statistics Service of Ukraine. – K., 2018.
8
36.9 43.4 19.70
0 20 40 60 80 100
Діти Дорослі Особа пенсійного віку
Figure 2. Age repatriation of surveyed households (%).
42 58
0 20 40 60 80 100
Жінка Чоловік
Figure 3. Gender repatriation of surveyed households (%).
Child Adult Persons of age 60+
Female Male

of retired persons in an average Ukrainian IDP household (cumulatively 51% for
both genders9).
2.3 Economic profile
2.3.1 Monthly income and its usage
The survey asked respondents about their av-
erage monthly income since January 2018.
42% of them stated to have earned more
than 11,000 UAH per month and 19% between
7,001 to 11,000 UAH. 13% received an average
monthly income of between 5,001 to 7,000 UAH
and another 13% between 3,001 to 5,000 UAH.
5% earned less than 1,500 UAH per month. 8%
of all respondents did not give full particulars on
their monthly income.
Figure 4. Monthly income of survey respondents.
The data above shows that
most surveyed households
have significantly higher in-
come than average Ukrainian
IDP households in the re-
gions10
. The respondents are
mostly middle-income Ukraini-
ans.
9 Statistics of the Ukrainian Ministry of Social Policy, November 2018. https://bit.ly/2CZaLzr
10
0
10
20
30
40
50
60
Lessthan1,500UAH
1,500-3,000UAH
3,001-5,000UAH
5,001-7,000UAH
7,001-11,000UAH
Morethan11,000UAH
Менше ніж 1,500 грн.
1,500-3,000 грн.
5,001-7,000 грн.
3,001-5,000 грн.
7,001-11,000 грн.
Figure 5. Break down of average monthly
incomes (in %). Blue: NMS data covering
the whole Ukrainian IDP population. Red:
Surveyed respondents of the Affordable
Housing programme for IDPs.

Spending on basic needs is a major source of household expenditure among
the surveyed households. Basic needs include housing, nutrition, medicines, ed-
ucation, communications, clothing and transport. 17% of all respondents declared
to spend between 3,001 to 5,000 UAH monthly on basic needs and 32% spent
5,001-8,000 UAH. 25% stated that they spent 8,001-12,000 UAH on their basic
needs and the remaining 26% of the surveyed households spent even more of
their monthly income on the satisfaction of their basic needs. Compared to average
Ukrainian households, the surveyed households of the Affordable Housing Pro-
gramme spend considerably more on basic needs in absolute numbers, but less
in income percentages11. This is another indicator that the housing recipient house-
holds are wealthier than average IDP households because they can afford spend-
ing a higher amount of money on basic needs. However, their monthly income
is often too low to make considerable monthly savings.
The households who previously stayed in rented accommodation were also
asked about their monthly rent payments (i.e. what they used to pay before moving
into their current purchased homes). Among average IDP households, rental pay-
ments are a major component of household expenditure. Accommodation ex-
penditure also falls into the category of spending on basic needs. Most survey re-
spondents stated that they spent between 3,001 to 7,000 UAH per month on rent.
However, these numbers have to be considered with caution due to several limita-
tions in the data set12.
Some 57% of the respondent households stated that their most problematic issues
were living conditions. 28% mentioned that a household member was suspended
from social payments. These proportions are much higher than in the average
Ukrainian IDP population (7%/1%)13. The reasons for these divergences were not
investigated in this review.
11
Expenses and resources of households in Ukraine (according to the data of the sample survey of
living conditions of households) for 9 months of 2017. Statistical Bulletin. State Statistics Service of
Ukraine. – K., 2017. Page 60. http://www.ukrstat.gov.ua/druk/publi-
cat/kat_u/2018/zb/07/zb_vrdu2017_pdf.pdf
12 Limitations: 15% of the respondents did not correctly answer the question about their previous
accommodation type. Furthermore, 17% of the respondents who indicated having previously lived
in private apartments did not reply to the question about the monthly amount they previously paid
for rent.
13

The main household income source of the surveyed households was salary
(76%), followed by 38% government IDP support, 25% retirement or long service
pension, 23% financial support from relatives residing in Ukraine and 21% social
assistance. On average, 1,8
persons per household gen-
erated income.
In comparison with average IDP
households in Ukraine, the sur-
veyed households of the Affor-
dable Housing Programme are
able to cover much more of their
household expenditures with
their salary, which makes them
more economically inde-
pendent from the State14.
14
0
10
20
30
40
50
60
70
80
GovernmentIDPsupport
Salary
Retirementorlongservice
pension
Socialassistance
Irregularearnings
Financialsupportfrom
relativesresidingin…
Humanitarianasistance
Disabilitypension
Socialpension
Otherincomes
NMS UNHCR
Figure 6. Sources of income of households (in %). Blue: NMS findings of the whole Ukrainian IDP population.
Red: UNHCR surveyed households of the Affordable Housing Programme for IDPs.
0
5
10
15
20
25
30
35
40
45
Sole source Multiple source
Figure 7. Income sources covered by sole or multiple sources
(in %).
GovernmentIDPsupport
Salary
Retirementorlongservicepension
Socialassistance
Irregularearnings
Financialsupportfromrelativesre-
sidinginUkraine
Humanitarianassistance
Disabilitypension
Socialpension
Otherincomes

The analysis of the surveyed households’ income sources indicates that a majority
of households have multiple income sources (up to five).
Households with monthly incomes
of more than 11,000 UAH have the
highest prevalence of multiple in-
come sources. In other words, the
comparatively high incomes by the
majority not only contain salary.
Moreover, household members of
age 60+ mostly do not depend on
pensions alone.
# income sources sole 2 3 4 5
Grand Total 40% 27% 13% 12% 8% 100%
Less than 1,500 UAH 4% 2% 0% 0% 0% 6%
1,500-3,000 UAH 2% 2% 0% 2% 0% 6%
3,001-5,000 UAH 8% 4% 2% 0% 0% 13%
5,001-7,000 UAH 2% 2% 6% 4% 0% 13%
7,001-11,000 UAH 10% 6% 2% 2% 0% 19%
More than 11,000 UAH 15% 12% 4% 4% 8% 42%
The survey reveals that among the beneficiary households of the Affordable Hous-
ing Programme, only 27% were able to make savings on a regular basis.
Monthly savings varied significantly from 500 UAH to more than 5,000 UAH de-
pending on the household. Out of the 73% respondents without regular savings,
21% stated that they had to borrow money to cover their household expenditures.
sole
source
40%
2 sources
27%
3
sources
13%
4
sources
12%
5 sources
8%
sole source 2 sources 3 sources
Figure 8. Repatrition of income per number of sources.
Figure 9. Number of income sources per income category.

Personal savings (often from pre-displacement times or sale of property in NGCA)
and financial support from relatives could be among the main sources, which al-
lowed the recipient households to cover 50% of the apartment costs under the
Affordable Housing Programme.
2.3.2 Employment situation
The survey reveals that before their displacement, 88% of the surveyed house-
holds had economically active members and 12% were economically inactive.
93% of their jobs were official. 23% of them worked in the financial sector, 19%
in the public sector and 7% in retail. The rest of the jobs was spread among differ-
ent other economic sectors. The survey respondent households had much higher
employment rates than average IDP households before displacement.
-42%-32%-22%-12%-2% 8% 18%28%38%48%58%68%78%88%
BEFORE
WHEN DISPLACED
Figure 10. Monthly fi-
nancial situation of
surveyed households
(in %).
Figure 11. Economic activity of surveyed households before and after displacement.
0
5
10
15
20
25
Збереження Жодних
збережень та
заборгованостей
Борги Нема відповідіSavings Neither savings Debts No answer
nor debts

After displacement, 58% of the apartment recipient households were economi-
cally active and 42% were economically inactive. This sharp decrease of eco-
nomic activity after displacement is in line with similar trends among the average
Ukrainian IDP population15. 86% of all surveyed households stated that their
household members were officially employed. 15% of the surveyed households
had members working in public services, 9% in the financial sector and 5% in retail.
The rest was spread among different economic sectors.
2.4 Educational profile
84% of the surveyed households stated that their household head acquired
higher education. 11% had secondary school education and 3% benefitted from
vocational training. 2% did not give full particulars on their educational profile. In
comparison with average Ukrainian IDP households, more surveyed house-
hold heads completed higher education and less vocation training (average:
46% versus 27%)16
. Relating it to the comparatively high economic activity levels
of the surveyed households, it could be concluded that households with highly ed-
ucated heads have found it easier to be employed.
2.5 Motivation to participate in the Affordable Housing Programme
15
16
0 20 40 60 80 100
Iнші причини
Економія при купівлі житла
Житло на ринку занадто
дороге
Не було житла у наявностіUnavailable privately owned housing
Current housing is too expensive
Savings on housing purchase
Other reasons
Figure 12. Motivation for participation in the Affordable Housing Programme (in %).

Figure 13. Sources of information about the Affordable Housing Programme (in %).
The survey states that there have been mainly two reasons for participating in
the Affordable Housing Programme: unavailability of privately owned hous-
ing (84%) and high costs of current accommodation (36%). These findings
correspond with some of the most problematic issues stated by average Ukrainian
IDP households17
.
Surveyed households heard and informed themselves about the Affordable
Housing Programme through the following channels: mass media (44%), the
State Youth Fund’s website (34%), personal networks (26%) and IDP self-help
groups (17%).
98% of the surveyed households stated that information about the Affordable
Housing Programme was accessible to them. A majority applied for the Afford-
able Housing Programme without contacting the State Youth Fund’s hotline in ad-
vance. The 28% hotline users found it particularly helpful to inquire about the
conditions of participation.
17
0 10 20 30 40 50
Інше
Групи самопомочі ВПО
Друзі
Сайт Державного фонду
ЗМІMass media
State Youth Fund’s website
Friends
IDP self-help groups
Others

2.6 Application process
42 out of 52 surveyed recipients (80%)
stated that they applied for the Afforda-
ble Housing Programme in November
2017, i.e. between 28 to 30 November. 7%
applied between 1 to 10 December and
7% from 11 to 20 December. 6% did not
give full particulars on their application
date. The data indicates that those families
that applied in December 2017 had low
chances of receiving housing support.
67% of all surveyed households did not face difficulties in obtaining the re-
quired documents. 11% faced problems in receiving a certificate to verify their
place of residence and 7% found it difficult to acquire a solvency document. The
remaining 15% is split between all other required documents. In conclusion, the
required documents were acquirable for the majority of the surveyed households.
On average, it took the surveyed households five days to collect all required
documents in order to apply for the Affordable Housing Programme.
21-31 грудня 2017 1-10 грудня 2017
11-20 грудня 2017 листопад 2017
Figure 15. Repartition of the time period for all procedural steps (amount of weeks).
Figure 14. Time period of application submission.
0 5 10 15 20 25 30 35
Average time for applicant to collect all required documents
Average time period for State Fund to check documents
Average waiting period for applicants to receive a contract proposal
Average time period until applicants moved into new apartment

As a next step, the State Youth Fund checked all submitted documents and this
took on average two weeks (half a month). It proposed housing contracts to
the surveyed households after an average of 26 days, which is approximately
one month. The surveyed households stated that they could move into their
apartments after an average of more than six months (188 days). This indi-
cates a long waiting period for housing recipients. The related reasons were
not part of this investigation. 94% stated that they did not require assistance from
non-governmental organisations (NGO) during the application process. Among
surveyed households, more than 80% stated that they did not apply to other
housing programmes of the State Youth Fund. 5% stated to have applied for a
loan and 3% for a mortgage programme with the State Youth Fund.
According to the survey results, 76% of applicants who received a housing con-
tract had a high trust level toward the State Youth Fund. Only a small minority
(1%) had a low trust level.
низький середній високий
Figure 16. Trust level of surveyed households toward the State Youth Fund.

2.7 Financial contribution of survey respondents to the Affordable
Housing Programme
Many surveyed respondents depended on several financial sources to cover
their 50% contribution, with 63% using personal savings18. 4% borrowed
money from family/friends and 30% used a private loan. 7% received a related
bank loan and 7% used other financial sources.
Respondents with bank
loans stated that their bank
credits constitute 26% of
their financial contribution.
75% of the bank credits have
a timeline of up to 10 years
and 25% a timeline of up to
20 years. This puts an addi-
tional financial burden on
these survey respondents
due to high bank interest rates. Survey respondents who had to borrow money
mentioned that their borrowings amounted to 45% of their financial contribution.
This shows that personal savings and borrowing are the two main means of
financial contributions that survey respondents have made to the Affordable
Housing Programme. As mentioned earlier, personal savings might often originate
from the pre-displacement time period or from property sales in NGCA of Ukraine.
18
This means that the survey respondents covered 50% of the total apartment costs with their per-
sonal savings.
0
5
10
15
20
Bank credit relatives &
friends
support
Non official
debt/loan
Others
sole source secondary source
Figure 17. Other financial sources than personal funds.
Cases of sole and secondary source (in %).
Bank credit Relatives/ Non official Others
friends’ debt/loan
support

2.8 Housing objects
Applicants who received a housing support offer from the State Youth Fund chose
apartments based on a list of newly constructed objects selected by the Minre-
gion19.
86% of the survey respondents stated that their cho-
sen apartment is located in a new building,
whose construction had been recently com-
pleted. Hence, 14% did not answer properly the sur-
vey question or they acquired an apartment in a
building where the developer did not fulfiill its obliga-
tions20
. Out of these 14%, 8% live in buildings with
remaining construction issues and 6% mentioned
that their buildings were not brought into operational
use.
When the survey was conducted, 82% of the pur-
chased apartments required some work to be
completed21. 90% of the households had invested
or will have to invest additional resources into
their apartments. This could include, for example,
spending on wall painting and interior household ap-
pliances (e.g. a refrigerator) and/or furniture.
19
According to decree no. 140 of 2009.
20
The Ukrainian construction legislation obliges developers to only provide newly constructed build-
ings that are certified and are therefore ready to be brought into operational use.
21
This work could be of various nature, from core construction work to light finishing touches. Some
of these apartments are ready to be occupied.
Новобудова, не введена в
експлуатацію
Недавно збудована будівля
з певними проблемами
Новобудова без якихось
проблем
Необхідні додаткові внески
у будівельні роботи
Порожня, готова до
заселення квартира
Figure 18. Status of the building.
Figure 19. Type of apartment.

Figure 20. Illustration of regional averages of rent, household income and contributing household members.
3,167
4,667
5,000
4,000
5,333
6,000
1,500
2,750
6,000
10,250
6,908
6,286
7,500
11,000
10,333
2,250
4,000
1,488
6,000
4,000
11,00011,000
8,157
-
0.2
0.4
0.6
0.8
1.0
1.2
1.4
1.6
1.8
2.0
2.2
2.4
2.6
-
2,000
4,000
6,000
8,000
10,000
12,000

The survey reveals that on average, an obtained apartment encompasses 61
square meters (sqm), which means approximately 20 sqm per household
member. This number is lower than the 73.5 sqm, which are prescribed by the
Cabmin decree no. 140. One possible explanation could be that the applicants
often restricted themselves to purchasing cheaper two-room apartments, which are
often smaller than 73.5 sqm. This trend could be due to some of the households’
challenges in affording the 50% financial contribution to the Affordable Housing
Programme.
2.8.1 Previous accommodation type
67% of the respondent households
stated that they previously stayed in a
rented apartment, 17% with a host
family, 2% in social housing and 14% in
other housing circumstances. These
findings only slightly differ from the av-
erage IDP situation in Ukraine22.
22
Figure 22. Type of previous accommodation.
Figure 21. Regional division of average apartment size, and average size per household member.
-
10
20
30
40
50
60
70
80
90
100
Average size of apartment in sq.m Average of sq.m per household member

2.9 Access to city centre and social infrastructure
80% of the respondents stated that their apartment is situated near a public
transport stop. For every second survey respondent, it took up to 45 minutes to
reach the city centre. 46% of the respondents’ apartments were located maximally
15 minutes away from a school and healthcare facility, while 51% were situated
within 16-40 minutes away from an educational and health facility. These findings
indicate that a majority of the chosen apartments are within accessible reach
to the city centre and to social infrastructure like schools and healthcare fa-
cilities.
0 10 20 30 40 50 60
21-45 minutes Up to 20 minutes
46-80 minutes
0 10 20 30 40 50 60
16-40 minutes Up to 15 minutes
41-75 minutes
Figure 24. Time period from the apartment to the
next medical facility.
Figure 23. Time period from the apartment to the
city centre.

3. Observations about the 50/50 programme
It has to be acknowledged that there is no housing programme that meets the
needs of roughly 1.5 million Ukrainian IDPs due to their different requirements and
capacities. There is a whole spectrum of Ukrainian housing programmes, which
could be suitable for different sections of the IDP population.
There should be a reasonable relationship between the financial volume of the
programme and the number of potential housing recipients. Financially limited
housing programmes currently have to cope with a huge group of potential bene-
ficiaries. This raises expectations which cannot be met, causes frustration and may
damage the reputation of the institution hosting the programme.
Currently, the 50/50 Affordable Housing Programme of the State Youth Fund has
a rather broad target population. It covers all IDP households whose monthly in-
come is lower than the sum of three average monthly incomes.Using a projection
based on NMS data, this would theoretically encompass more than 90% of all IDP
households23, or more than 1.35 million persons.
The national state budget for the 50/50 programme in 2017 was 30 million UAH
and 100 million UAH in 2018. In 2017, the budget covered only 65 IDP households.
For 2018, up to 300 IDP households could benefit from this programme (estimation
of State Youth Fund in November 2018). However in 2017, the waiting list encom-
passed 1,272 IDP households who applied for housing support under the 50/50
Affordable Housing Programme. It would be advisable to either significantly
increase the national state budget to meet the demand, or to introduce a nar-
rower target IDP population to address housing needs of a particular niche:
not average middle-class households, since they can afford loans or rent-to-own
schemes; not the poor, since they need social housing; but perhaps middle-class
IDP households with specific housing needs (e.g. persons with disabilities who
need specific types of apartments, families with 3+ children, foster families who
need more space, etc.).
23

3.1 Selection process
The analysis of the application process shows that housing recipients were se-
lected solely on the basis of the date when they submitted all required docu-
ments to the State Youth Fund (“first-come, first-serve basis”). In other words, be-
fitting from housing depended primarily on applicant household members learning
about the Affordable Housing Programme at an early stage, their timely receipt of
the required documents and their quick reaction.
Once applicants are on the waiting list, there are no regulations on how to man-
age the waiting list and in which cases applicants will be removed from the
waiting list (e.g. death, inability to cover the 50%, changes in life situations, etc.).
For transparency and fairness reasons, related regulations are required. Currently,
persons who receive a housing contract proposed by the State Youth Fund but
cannot cover their financial contribution, are not removed from the waiting list. Ac-
tually, they are able to keep their high position in the waiting list by simply postpon-
ing their housing request and being considered again for the following year’s round.
Clear procedures for these cases have to be established.
Numerous cases of applicants with the same surname can be found that hold
close-by positions on the waiting list. This observation introduces the suspicion that
with a high probability, several applicants from the same family applied with the
same housing programme by entering the credentials of different household mem-
bers (“split family phenomena”). The regulations of the application process should
clearly state that only one application per household is allowed and that if a
family submits more than one application, none of the applications will be
considered. Additionally, the State Youth Fund should conduct a positive com-
munication campaign about the eligibility criteria to motivate eligible house-
holds to apply for this programme. This approach will provide applicant families
with incentives to comply with the rules. Another approach for households
whose actions reveal deception permits the State Youth Fund to apply parts 1 and
2 of Article 230 of the Ukraine Civil Code, which sets out the legal consequences
of committing a transaction under the influence of deception. Based on this article
of the Ukrainian Civil Code, a civil court declares the contract invalid and obliges
the offender to compensate twice the value of the damage and the moral damage
caused. In this way, the State withdraws its support in case of deception. In prac-
tice, a prescription period for cases of deception will have to be added to the
contract between the IDP applicant household and the State Youth Fund.

The current regulations do not forbid simultaneous participation in several
State Youth Fund programmes (e.g. "Youth Lending” and "Affordable Housing”).
However, the role of the State Youth Fund should not be to provide the same ap-
plicant with housing under different programmes. The programme should support
a maximul number of households, paying attention to their specific needs. This
approach is even more relevant given that approximately 600,000 Ukrainian citi-
zens stated that they require improvement in their housing conditions. Therefore,
it is important that this aspect is well regulated and does not contain any loopholes.
3.2 Unification of processes
The analysis of affordable housing programmes at the local, regional and national
state levels reveals the existence of several queues for the participation in
such programmes. Complexity could be reduced, processes unified and user-
friendliness improved by establishing one single queue system for the na-
tional, regional and local levels. One important step would be to provide explicit
and understandable information about all available affordable housing pro-
grammes on the websites of each regional offices of the State Youth Fund.
3.3 Financial issues
UNHCR found that some affordable housing programmes at the regional and
local levels were publicised online, although they are in practice not func-
tional due to lack of funds. Such programmes were found, for example, in My-
kolaiv, Odesa, Uzhorod, Ternopil and Mariupol. Clear communication about
these programmes is important not to mislead the public.
Contrary to available information on the State Youth Fund’s website, the mortgage
lending component of the Affordable Housing Programme is in reality not
available. Related information should be updated not to mislead the public.
The Ukrainian Tax Code states that residential properties purchased under
the Affordable Housing Programme are exempted from the payment of value
added tax (VAT). In fact, both the State Youth Fund and the housing recipients
pay the full price of the apartment to the developer, including the VAT. Due to the

increased value, both parties have to assume the burden of excessive financial
costs.
Furthermore, the increased prices led to a lower number of housing beneficiaries.
On the one hand, fewer households were able to cover their 50% financial contri-
butions. On the other hand, the increased total cost of the apartments reduced the
number of housing objects which the State Youth Fund could offer to applicant
households under the State Youth Fund’s already limited financial budget. Tax au-
thorities should be made aware of the related existing regulations. If taxation for
housing objects under affordable housing programmes continues, Minregion
should intervene at a higher political level.
Housing recipients who borrow money to cover their 50% financial contribution are
confronted with high interest rates, which will create future financial burdens for
these households. However, the Affordable Housing Programme of the State
Youth Fund is socially-oriented. Therefore, the State Youth Fund should advo-
cate with the State Fiscal Service for the recognition of loans spent for the
purchase of affordable housing as “affordable housing loans”. An “afforda-
ble housing loan” would permit a housing recipient to demand tax reim-
bursement and use it and other resources for financial coverage of the interest
rate payments.
3.4 Remarks about Cabmin decree no. 819
Cabmin decree no. 819 prescribes a timeline of 15 days for the regional offices of
the State Youth Fund to verify an applicant’s documents. However, this decree
does not foresee any timelines for the working process of the State Youth Fund
and the decision-making process of the Commission reviewing applications. Ap-
propriate timelines should be added in the decree.
Providing applicants with only seven days for collection and resubmission of doc-
uments is too short. As mentioned in paragraph 2.6 above, this evaluation found
that it took every second surveyed household more than five days to collect all
required documents. For some, it took as long as 10 days. Therefore, the seven-
day reapplication period could prevent some applicants from re-submitting all doc-
uments on time. For this reason, the State Youth Fund should increase the reap-
plication period to at least 10 days instead of seven. Furthermore, opening the

application process for 2018 only in November resulted in a very tight time sched-
ule for applicants. It is recommended to open the 2019 application process
earlier.
Moreover, there are no available appeal mechanisms to file a case against the
decision of the regional offices of the State Youth Fund, the State Youth Fund
and the Commission. Such mechanisms should be established to ensure a
strong Rule of Law component in the Affordable Housing Programme.
Regarding this year’s adjusted application process, participants informed UN-
HCR that they faced several problems during this process. Firstly, it was the
applicants’ responsibility to collect relevant documents from developers. Appar-
ently, only a few developers (e.g. construction companies) wanted/were able to
provide the whole set of required documents. As a consequence, the choice of
available housing decreased and apartment prices rose significantly above aver-
age market prices. In other words, the new regulations resulted in a separate
housing stock market, in which the applicants and the State Youth Fund have to
contribute more financially in order to cover their 50% share of the apartment costs.
As a consequence, limited funds oblige the State Youth Fund to finance a lower
number of apartments, which is a disadvantage for IDP applicants. In order to
broaden the available housing stock market and thereby reduce housing prices,
related regulations should only foresee a collection of reasonable documents that
developers are realistically able to provide.
The Commission approves the list of housing recipients and the size of financial
state support (50% cost coverage) on the basis of an evaluation about "citizen
category", "purchased object" and "size of state support". It is questionable
whether the Commission is able to process the numerous application pack-
ages and assess their conformity in a timely manner. There is also no decision-
making procedure explained in the decree.
Cabmin decree no. 819 does not exclude reconstruction as an alternative to newly
constructed buildings. Reconstruction would be more affordable for potential IDP
households because those apartments are usually smaller and have lower prices
per sqm. Therefore, the State Youth Fund should consider promoting recon-
struction as a more affordable alternative to newly constructed buildings.

This approach would include an information campaign among potential IDP house-
hold applicants and developers about this alternative. Also, the State Youth Fund
should prepare instructions regarding required submission documents.

4 Conclusions and recommendations
The profile of the surveyed IDP households reveals some common features:
 Households are mostly middle-class24 Ukrainians. Every fourth house-
hold head is a person of age 60+ and the proportion of young parents
is low. Compared with average IDP households, the surveyed housing re-
cipients have high levels of economic activity and education, which
makes them more economically independent from state employment sup-
port. Their average income per household member is comparatively
high. However, the income is often not sufficient to make regular sav-
ings. Personal savings and borrowing have been main sources which
allowed the surveyed households to receive an apartment under the
Affordable Housing Programme. The profile of surveyed households is
heterogenous. Nevertheless, the Programme does not cover the whole va-
riety of IDP household situations, which consists of even more disparities.
 Taking into account the diversity of IDP housing problems, the financing
volume of affordable housing programmes through the state budget should
be increased.
 If the national state budget for affordable housing of IDPs will not be signif-
icantly increased, it is recommended to introduce a narrower target IDP
population to address housing needs of a particular niche. It could be-
come a niche programme for IDP households with particularly specific
social vulnerability run in parallel with other types of housing support
suitable for other sections of the IDP population25. This niche would not
include average middle-class households, since they can afford loans or
rent-to-own schemes; not the poor, since they need social housing; but per-
haps middle-class IDP households with specific housing needs (e.g. mid-
dle-class households with persons with disabilities who need specific types
of apartments, families with 3+ children, foster families who need more
24
This finding results from an income analysis where 42% earned more than 11,000 UAH, which is
average income in Kyiv (the city with the highest average income).
25
Such other types of housing support could be temporary and social housing, revolving funds,
other affordable housing programmes and subsidised credits, etc.

space, etc.). In this case, the solely “first-come, first- serve” registration
date will not be the only selection criteria.
 Due to financial reasons, not all economically-active IDPs are able to make
their financial contribution to the 50/50 programme. Therefore, it could be
worth considering introduction of a second financial mechanism within the
Affordable Housing Programme for IDPs/veterans, which would be prefer-
ential mortgage lending.
Concrete recommendations:
1. The review assessed the timeline from the moment when applicants
submitted the documents to the time period when they could move into
their new apartments. The analysis shows that the whole procedure took on
average 188 days, which is longer than six months. When the surveyed re-
cipient households moved into their new apartments, 82% of the residences still
required some sort of work to be finished by the construction company. For
user-friendliness, the State Youth Fund should examine alternate solutions
to make the programme more timely and accessible for IDP applicant
households.
2. From a Rule of Law perspective, the new decree no. 819 has some serious
deficits, which should be improved.
a. The management of the waiting list should be regulated. Among
others, the decree should include clear rules on when to remove par-
ticipants from the waiting list to allow other participants to benefit from
the Affordable Housing Programme. The case of temporary rejection
should also be clearly regulated.

b. Decree no. 819 should regulate that cases of several household
members applying for the Affordable Housing Programme will be in-
vestigated and measures be taken in cases of illegally obtained
benefits. A combination of positive communication about the de-
fined vulnerability criteria and clear perpetrator discouragement
by rejection of their application in case of proven misappropriation,
could mitigate the “split family phenomena”.
c. A compensation system on housing objects should be estab-
lished in cases of legally proven deception (according to Art. 230 of
the Ukrainian Civil Code), which legally binds the housing recipients to
reimburse twice the value of the state support plus caused moral dam-
age. A prescription period for cases of deception should be added
to the housing contract between the IDP applicant household and
the State Youth Fund.
d. Decree no. 819 should forbid simultaneous participation of appli-
cants in several programmes of the State Youth Fund. It should be
ensured that there will not be any legal loopholes. This includes a
proper procedure of verification.
e. Financing for the Affordable Housing programme should be pro-
vided at an earlier moment than in November in order to ensure a
smoother application process.
f. There is no legally prescribed timeline for the State Youth Fund
and the Commission to decide about applications. Such a timeline
should be included in Cabmin decree no. 819 to ensure timely delivery
by the involved state bodies. Moreover, it would increase user-friendli-
ness for applicant households.
g. The State Youth Fund should closely monitor this year’s process
and assess how many days of verification and internal decision-

taking are required. In 2019, decree no. 819 should be amended
with realistic timelines.
h. The timeline for applicants to re-submit documents is too short
and should be increased to at least 10 days instead of seven.
i. Appeal mechanisms should be established so that applicants have
a legal means to file a case against the decision of the regional offices
of the State Youth Fund, the State Youth Fund and the Commission.
j. As only a few developers are able/willing to provide the whole set of
required documents to applicants, the list of required documents
should be reconsidered by the State Youth Fund.
3. One single queue system should be established by the State Youth
Fund and its regional offices to unify processes and improve user-friend-
liness.
4. Information about fund (un)availability and the waiting list of all local
affordable housing programmes should be published on the website of
each regional office. Clear communication about these programmes is im-
portant in order to not mislead the public and create wrong expectations and
hopes. There should be sufficient information about the available budget, the
waiting list and how to become participants in the programme. Information
should be presented in a simple, user-friendly way (similar to the four-step
model on the national State Youth Fund’s website).
5. The number of IDP applicants that received housing in Donetsk, Luhansk
and Dnipropetrovsk region in 2017 is very low, considering the high number
of IDP households in these regions. One way to increase their ratio of total

housing contracts could be to allocate housing funds in proportion to the num-
ber of IDPs inhabiting the region. This would require an amendment to para-
graph 4 of the decree no. 819.
6. The Ukrainian Tax Code states that housing objects purchased under
an affordable housing programme are exempted from the payment of VAT.
This right to tax discount is stipulated in Article 197 of the Ukrainian Tax Code.
The tax authorities should be made aware of the related existing regula-
tions. In case taxation for housing objects under affordable housing pro-
grammes continues, Minregion should intervene on a higher political level.
7. The State Youth Fund should inform housing recipients about the
possibility of demanding income tax reimbursement for the purchase of
affordable housing. This right to tax reimbursement is stipulated in Article 166
of the Ukrainian Tax Code. The list of expenses, which fall under the tax dis-
count, include the taxpayer’s expenses for the purchase of affordable housing,
the repayment of preferential residential mortgage loans granted for affordable
housing purposes and the interest rate on the loan.
8. The State Youth Fund should advocate in the State Fiscal Service for
the recognition of loans spent for the purchase of affordable housing as
“affordable housing loans”. An “affordable housing loan” would permit a
housing recipient to demand tax reimbursement and use it among other re-
sources for financial coverage of interest rate payments.
9. The State Youth Fund should consider promoting reconstruction as a
more affordable alternative to newly constructed buildings. Hence, the
State Youth Fund would have to promote an information campaign among po-
tential IDP household applicants and developers about this alternative. It should
also prepare instructions regarding required submission documents.

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